server-acl-init should be idempotent

[lkysow]

Currently, if any step in the server-acl-init command fails, then when the command is re-run it will never succeed.

This is because it first tries to bootstrap the ACL system. If it's already been bootstrapped then this will fail and the command will exit without performing the rest of its tasks (creating other acl tokens).

Not only should it be idempotent but it should continue executing until its completed its job. If it can't connect to Consul servers or it gets an error it should just retry.